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I 



"To ^pcure EfBcienf'r nnH Economy in Onvorntt 

DETROIT BUREAU OF 
GOVERNMENTAL RESEARCH, Inc. 

100 GRISWOLD STREET 



A REPORT Oil TIE 
ORGANIZATIOi: & ADIiIIMI STRATI ON 
of the 
BOARD OF EDUCATION 
of the 
CITY OP DETROIT 



Prepared for the 

BOARD OP EDUGATIOt 

by the 

DETROIT ETIRSAU OP GOVER10-ISI>ITAL RESEARCH 

October, 1915. 



0;\, 



A REPORT ON THE 

ORGANIZATIOIJ ABD ADLIINISTRiiTION 

of the 

BOARD 01' EDUCATION 

of the 

CITY OP DETROIT 



Prepared for 
THE BOARD OF EDUCATION 
hy the 
DETROIT BUREAU OE GOVERM.ffiNTAL RESEARCH 
100 Glrisv/old Street 
Octoher,- 1915. 






w; Of D. 

/WAV 14 



/y2o 



I*. 



FOREWORD 



This report on the Organization and Adminis- 
tratioii of the Board of Education was prepared 
by Mr. Arch M. Mandel, who has "been in charge 
of the entire survey of the Educational Depart^ 
ment made by the Detroit Bureau of Governmental 
Research. The report v/as prepared in October, 
1915. At this time it was apparent that a 
small school board would take the place of the 
large board, and it was believed that no real 
purpose could be served by presenting the report, 
It is now sent to the members of the nev/ly 
elected small school board as well as to the 
present Board of Education in the belief that 
it may assist in some measure in the problems 
attending the organization of the small Board 
of Education. 



- A - 
SUM?vIA.RY OF KECOMIVEMDATIONS 
It is recommended: 

1. That the Committee System l3e ATjolished . It is suggest- 
ed that the method of having important "business considered 
by standing committees he abolished, as committee action 
results in delay upon business. A large majority of the 
inspectors are not informed concerning matters v\?hich come 
before the Board of Education from committees, with the 
result that the approval of the Board of Education is of 

a perfunctory character, and there is a tendency for the 
committees to undertake administrative action which Ehoi::lr. 
be left to the executive officers of the Board, 

2, That Business Activities be Correlated v;ith Iffork of 
Superintendent , It is suggested that activities closely 
related to the education of Detroit's children, such as 
the purchasing of sites, the construction of buildings, 
the buying of supplies, and employing of clerks, book- 
keepers and janitors, be more closely correlated with the. 
duties of the superintendent, w'hether or not some one 

Nperson in charge- of these activities should be entirely 
subordinate to the superintendent, shoul^d be determined 
by local conditions, as v/ell as the practice of progress- 
ive cities. ', 

5, -Tha't New Rules be Adopted . To obtain a satisfactory 
reorganization of the Board of Education, it is suggested • 
that new rules be adopted which will remove from the provinc;. 



- B - 
of the Board raem'bers, the performance of administrative 
duties such as the employing of subordinates to the Super- 
intendent, the Supervisor of Property, and the Secretary; 
purchasing of supplies and equipment; care and maintenance 
of huildings; detail construction of "buildings; purche^sing 
of sites, etc vi^hich are logically the duties of executive 
officers appointed hy the Board « 

4o That the Proper Duties of the Board Be Mor e £h£roughl2- 
Exercised o Vifith the aholition of administrative activitlcr, 
on the part of the Board, it is suggested that the Board 
concern itself with more thoroughly carrying out its proper 
functions,- i.e. legislation relating to such matters as 
the cha,racter of educa,tion to he furnished, a plan of pur- 
chasing sites and construction of huildings over a period' o: 
years, estahlishment of a proper salary schedule to insure 
high grade teachers, the host methods of keeping abreast 
of modern educational progress, etc; and of inspectorial 
duties, relating to the character of service which is being 
rendered by the executive officers of the Board aaid their 
employees o By this is meant the results which are obtained 
in carrying out the plans of the legislative body. 
5o That Special Committees be Usedo Experience indicates 
tha^t better results would be secured by the appointment of 
special committees of the Board of Education to consider 
problems as they arise, rather tha,n the reference of these 
"oroblems to standing committees = These standing committees 



- c - 

frequently deal with questions in a superficial way since 
their time is ta,lien up "by a multitude of details, 

6, That a Calendar of Ileetinss Be Prepared o It is su.ggested 
that the Superintendent, as executive officer of the Board, 
should have prepared and sent to each memher of the Board, 
prior to Board meetings, a synopsis of 8,11 husiness v/hich is 
in order for transaction at the ne::t meetinso Such a pro- 
cedure will enable the Board members to come prepared to 
discuss intelligently the problems which they must decide. 

7 . That a Reduction in the Size of School Board Be Con- 
sidered. In a large School Board, m.ade up of m.enbers 
elected by wards, there is a teilci.«ncy towards loose 
organization and the subordination of school interests to 
personal politics, and the neglect of the larger interests 
of the city to the advantage of particular wards, for 
this reason, consideration is urged for the proposed 
charter amendment providing for a school board of seven 
members, elected at large, ea,ch member to serve for a 
term of six years. 



ORGANIZATION AND ADMINISTRATION 

Of the BOARD OF EDUCATION 

of the CITY OF DETROIT 

Plan of the Report 

This report is the first of a npraber of reports 
heing prepared upon the organization and administration 
of the Board of Education at the invitation of the Board-. 

The report is based upon facts secured by inter- 
views vsi th members and officers of the Board, and from 
official records. The findings and recommendations relate 
only to the system underlying the organization and adminis- 
tration of the Board of Education, and any adverse 
criticism presented is criticism of the system and not of 
individuals. 

The iBspectors are to be commended for their 
earnestness and zeal, and for the time given gratuitously 
to Board and Committee duties. It must be realized that 
the present Board inherited the system and practices of 
former boards. 

It has seemed logical to present this report 
in the following form: 



Page 



1. Introduction 

1. Law creating the School District 4 

2. legal Powers and Duties of the Board 

of Education 4 

3. Functions of a Board of Education 5 



- 8 - Page 

4. By-Laws of the Board of Education 8 
!!♦ Board of Ed-gcation - V/ork of Committees 

1, Number and Kinds of Committees 9 

2, Duties and Functions of Committees 12 

3, How Committees V/ork 13 

4. Character of Discussions 28 

5. Consideration of Annual Budget Estimates 31 

6. Summary of Hov; Committees Wcjrlc 33 

III« Boar^ of Education - Proper 

1. General 36 

2, Meetings of the Board 36 
3- Sources of the Business of the Board 42 
4. No Calendar of Meetings 44 
5» Consideration Given Business 45 

6. Consideration of Annual Budget Estimates 50 

7, Action of Board Perfunctory 51 
8- Disadvantages of the Ward System 52 
9. Relation of Mayor to Board 55 

10. Summary of How Board V/orks 56 

IV. Recommendations 

1. Committee System Should he Abolished 58 

2. Business Activities Should be Correlated 58 

With Work of Superintendent 

3. New Rules Should be Adopted 66 

4. Proper Duties of the Board Should be 72 
More Thoroughly Exercised 



.^.-jX'Tr.;. 



- 3 - 

Page 

5. Special Committees Should be Used 72 

6. Calendar of Meetings Should be Prepared 75 

7. That a Reduction in the Size of School 76 

Board be Considered 



I - B UBODUCT IOK 

1 . Law Creating School District . 

The City of Detroit comprises one school district, the 
affairs of v/hich are conducted bv 21 school inspectors, 
elected for a term of four years upon partisan tickets, 
one inspector from each ward. 

2 , Legal Powers and Duties of the Board of Education . 
Under the State lav7 the Board of Education has full power, 

1. To regulate the finances of the schools 

a - To transmit to the Common Council an estimate of 
the amount of money deemed necessary for the 
fiscal year next ensuing. 

b - To apply for and receive all moneys appropriated 
for the primary schools. 

c - To make by-laws and ordinances relative to making 
of all necessary reports and transmitting the 
same to the proper officers as designated by law 
so that the city may be entitled to its propor- 
tion of the primary school fund. 

d - To borrow a sum of money for temporary purposes 
for maintenance. 

e - To establish a teachers' retirement fund. 

f - To audit and approve all pay-rolls, bills, 

accounts, and claims of every character against 
the Board. 

2* T o regulate the schools and the course of study . 

a - To regulate the schools 

b - To regulate the books to be used 

c - To determine the powers and duties of teachers 

d - To provide special schools (kindergartens, 

ungradec schools, school for deaf ), and instruct- 
ion. (Study of dangerous diseases, system of 
humane education, etc.) 



-5- 



3 - To control the employes of the Board. 

a. -To employ teachers and determine their powers 
and duties. 

t - To appoint a secretary, prescribe his duties 
and compensation. 

c - To appoint a superintendent and determine his 
salary. 

d - To appoint necessary officers and prescribe 
their powers and duties. 

e - To appoint persons to take the census, to 

prescribe their duties and rate of compensation. 

4 - To determine miscellaneous policies . 

a - To submit any measure or question not coming 
under the general power or authority to a vote. 

b - To make rules relative to visitation of schools. 

c . - To acquire and control land for sites* 

d - To annex new school territory. 

e - To condemn land for school purposes. 

f - To submit every resolution or proceeding whereby 
any liability or debt may be created, or 
originating the disposal or expenditure of 
money to the mayor for approval. 

g - To pass resolutions over mayor's ve.to. 

h - To have authority over anything whatever that 
may advance the interest of education, the good 
government and prosperity of the free schools 
in said city, and the welfare of the public 
concerning the same. 

1 - To furnish the Superintendent of Public 

Instruction with such information as he may 
require, 

j - To furnish free text books (by vote). 

^ " iJ' ^'^nctions of a 3oai'd of 5 ducat Io n . 

In the management of the affairs of the school system, 

there are three distinct functions - the legislative, 



-6- 

administrative , and inspectorial. 

Legislative functions are those which deal with the 

formation of general policies to be followedo In this 

instance the Board of Education is responsible for the 

character and quality of education to be fxirnished to all 

persons between the ages of 5 and 20 in the Citj? of 

Detroit. This responsibility makes it incumbent upon the 

Board of Education to decide the following ruestions: 

How much money should be spent upon the schools in 
any year 

How much should be spent for teachers' salaries, 
other salaries, supplies, repairs, etc. 

How many school buildings and what kind should be 
constructed 

What kind of education is best for the children of 
this city. What subjects should be taught 

V/hat kind of teachers should be employed for the best 
interests of education in Detroit 

V/hat salaries should be paid in order to obtain 
service adeouate for the needs of Detroit 

Administrative functions are those which deal with 

carrying out the decisions arrived at by the Board of 

Education on the above ouestions. After the Board has 

decided what subjects are to be taught, the next step 

is to have them taught; after concluding how much to spend 

on educational supplies, the next move is to purchase 

those supplies; after deciding the qualifications of 

teachers, such teachers should be obtained; and when it 

has been resolved how much money to spend and for ¥hat 

to spend it, the next step is to spend it. 



-7- 
These administrative duties, the Board of Education 
itself can perform or else have them performed by 
professional persons employed for that purpose. 
Good practice demands that a body such as the Board of 
Education limit itself to promulgating policies and to 
leave administration to trained executives. This matter 
and the reasons therefor applied particularly to Detroit 
r;ill be discussed thruout the report. 
Inspectorial functions are those vhich deal with the 
appointment of the chief officers of the Board and the 
inspection of results obtained from the fulfillment of 
the policies by such officers. With the power to out- 
line policies goes the right to see that they are carried 
out and that their purposes are accomplished. In order 
to do this effectively the Board must receive periodic- 
ally adequate reports from its officers as to, - 

Financial transactions informing it how the money was 
spent, what w-^.s obtained for the money spent, and costs 
of various activities^ 

Educational activities indicating such matters as 
overage and progress in the schools; sizes of classes; 
work accomplished in the various branches during a 
specified period; att.-Rdance records; progress of work 
in night schools, special schools, etc.' 

Building activities showing progress of construction 
work, etc. 

Maintenance of buildings telling of repair work done; 
unit costs of work; amount done by contract and that 
done by direct labor; general conditions of buildings 

Care of buildings showing unit costs for cleaning 
them; coal consumption records compared school by 
school, etc. 



-8- 



Consumption of supplies of all kinds; per capita 
cost of educational supplies compared school by 
school; cost per room of janitors' and engineers' 
supplies, school by school 

Besides receiving reports from its employes, some things 

can be learned from actual visits to schools, altho it is 

questionable ho\v much a layman can gain from visiting 

class rooms. 

On the other hand, the Board of Education, as part of 

its inspectorial functions, must submit reports to the 

State educational authorities. 

F rom the above illustrations it can readily be seen that 
if the Board of Education administers its own policies, 
its inspectorial duties are rendered worthless because 
the Board y;ould then be a judge of its ov/n acts. 

4 - By-Ia\^s of the Board of Educatio n. 
Based upon the powers grantee, it by the State law, the 
Board of Education adopted by-laws which governed the 
duties of its committees, and its officers. These duties 
not only include legislative and inspectorial functions 
which belong legitimately to the Board itself, but they 
include administrative functions which should be dele- 
gated to its employes who are chosen because of their 
special qualifications. 



II - BQAEI) OF EDUCATIOI^ - WOKK OF COMOTTESS 

Number and Kinds of Committees. 

The Board of Education is -divided into eight standing 

committees as follows: 

Teachers and Schools 7 members 

Text Books and Course of Study 7 " 

Real Estate and School Buildings? " 

Supplies and Janitors 7 " 

Judiciary 5 |' 

Finance ■ 5 

Sanitation 5 " 

Rules ' 5 " 

Practically all of the Board's business is transacted 
by the first four committees on the above list. 

Items of Business Transmitted frofn Committees to 
Board during six months ending June 30, 1916. 

Text Books and Course of Study 203 

Real Estate and School Buildings 118 

Supplies and Janitors 100 

- Teachers and Schools ^^ . 

Total 49 7 



Judiciary ^ 

Finance 29 

Sanitation None 

Rules No^e 

Total 38 



In all there are 48 committee memberships distributed 
as fbllors among the 2 inspectors: 



-10- 



Present List of Committee Memberships. 











Real 






Teachers 


Text 


Book 


Sstate & 


Supplies 


Total 


& 


& Course 


School 


& 




Schools' 


of Study 


Bldgs. 


JanTtors 




Mumford, S.C. 


X 










1 


Spaulding, J. C, 








X 




1 


Eeinhold.A.H. 










X 


1 


Gordon, A. 




X 








1 


Hunter , J. S. 


X 








X 


2 


Scovel.P.J, 




X 








1 


Bahorski , J. 




X 








1 


Morgan, A. P» 








X 




1 


Majeske , J,F. 


' 






X 


X 


2 


Maj?bee,W,H. 




X 








1 


Erueger ,P.G. 










X 


1 


Sherman ,A.B. 








X 




1 


Helj?. A. 


X 






X 




2 


Condon, G.M, 


X 


X 








2 


Auch,G,W. ,Pres. 













Neinas ,F .1. 


X 


X 








2 


O'Hara.J. 


X 










1 


Harms ,V/,T. 




X 






X 


2 


Heinrich,E.P. 








X 


X 


2 


Warn eke , J.H. 








X 




1 


Komrofsky ,H. 


X 








X 


2 


Jud i c i ary 


Finance Sanitation 


Pules 


Total 


Mumford, S.C. 








X 




1 


Spaulding, J. C. 


, X 










1 


Eeinhold.A.H. 




X 








1 


Gordon ,A, 


X 


X 








2 


Hunter , J,S« 















Scovel.F.J. 










X 


1 


Bahorski ,J, 








X 




1 


Morgan, A. P. 


X 








X 


2 


Majeske, J,P, 








X 




1 


Maj'fcee,W.H. 




X 








1 


Krueger ,P.G, 




X 








1 


Sherman , A, 3. 


X 










1 


Hely ,A, 








X 




1 


Condon, G,M, 










X 


1 


Auch,G,W, ,Pre£ 


u 













Neinas, P- C, 















0'Hara,J. 










X 


1 


Harms ,W,T, 


X 










1 


Heinrich,E,P. 








X 




1 


Warn. eke, J.H. 




X 






X 


2 


Fomrofsky, H. 
















-11- 



For practical purposes only the four comrnittees, Teachers 
and Schools, Text Books & Course of Study, Real Estate 
and School Buildings, Supplies and Janitors need be con- 
sidered. 

Of the twenty -eight memberships on these four committees, 
t?/elve inspectors have one each and eight inspectors two 
each. This fact should be borne in.. mind; tv:elve men serve 
on only one committee of importance, and only eight men 
serve on as many as two of the committees which transact 
the great bulk of the Board's business. This circumstance 
will appear especially significant when the "Board of 
Education and the Budget" ig discussed. 
The Committees are so organized that they each have one 
or more of the divisions of the Board of Education under 
their supervision. The committees on Teachers and 
Schools and on Text Books and Course of Study cover the 
educational phase of the Board's affairs and are the 
"Superintendent's committees". The Committee on Supplies 
and Janitors and the Committee on Real Estate and School 
Buildings are responsible for the construction, mainte- 
nance and care of buildings and deal mainly with the 
Supervisor of Property, the Architect and Consulting 
Engineer. The Finance Comimittee works with the Secretary, 
T/ho is the financial agent of the Board. The other 
committees. Judiciary, Rules, and Sanitation are general 
i;;.nd have no particular departments under their jurisdic- 
tion. 



-12- 

2 - Duties and^ _ Punctlons of Committees. 

The total of the di^tle^ rnd functions of all the, committ- 
ees comprises the duties and functions of the Board of 
Education as a v/hole , because vhat the committees resolve 
the Board passes upon; and the acts of the committees are 
the acts of the Board of Education, because, as vill be 
brought out later, the Board adopts unanimously, as a rule, 
what the committees prop: se. 

Prom attendance at 36 typical committee. meetings , the 
conclusion was reached definitely and unequivocally, that 
the committees spend practically all of their time in 
passing upon measures of administrative routine. The 
meetings, however, did not include those devoted to con- 
sideration of the annual estimates. 

To substantiate observations of the committee meetings, 
an analysis was made of the proceedings of the Board of 
Education for the six months ending July 1, 1916. This 
information relative to the committees could be gotten in 
no other way because minutes of committees are not kept. 
An exception to this rule is the committee on Real Estate 
and School Buildings, but here the minutes are not com- 
plete because action is often taken after adjournment or 
informally, when the stenographer is not present. 
Of this analysis the following tabulation is the result; 

Legislative Items - 109 - W^j 

Inspectorial " 44 7^ 

Administrative" 462 755^ 
Total Items 615 lOOfs 



-13- 

The relation of the committees to this condition lies in 
the fact that 82.70f'^ of the above items v;ere matters pre- 
sented to the Board by its standing committees, and of the 
total business transacted bv the Board of Education at its 
meetings during the past six months 75^ v/ere matters of 
administrative routine. 

Under the charter, and the school I'ws, the Board of 
Education has full power of taking the management of the 
schools to itself, even to the minutest detail, or of 
delegating the duties of actual management of the schools 
to paid employes. The by-laws of the Board of Education 
as constituted at present give to the Board thru its 
committees, the management of these details. 
3. How Committees Work . 

Teachers anc'. Schools Committee - Duties . 
Administrative . 

To have charge, together Fith Superintendent 
and other professional help, of the examins.- 
tion of candidates and nomination ^nd assi^^n- 
ment of teachers. 

To recommend for appointment supervisors, 
principals, teachers* 

To assign principals and teachers. 

To fill vacancies during term time, subject to 
approval of the Board at the next regular 
meeting. 

To determine, with advice of the Superintend- 
ent, the division of children among the school 

Inspectorial . 

To investiga.te all questions of discipline 
referred to the Board by the Superintendent, 
and all char;^-es affecting the character and 



-14- 

qualifications of teachers. 

Legislative . 

To fix salaries of educational employes and 
bath attendants. 

To determine the boundaries of school districts. 
As is the case vd th all regularly meeting committees, 
the Committee on Teachers and Schools meets bi-weekly, 
the meetings lasting usually from half an hour to one 
hour. In May, the meeting at which all teachers were 
reappointed required two sessions of about' three hours 
each. Instances from this and other meetings will illus- 
trate how the committee works. 

This May meeting referred to is the most important 
meeting of the year for this committee, and is given over 
wholly to the reappointment of the educational staff 
and the fixing of salaries for the following year. The 
superintendent presents his items of business and the 
committee, as a rule, passes upon them with automatic 
concurrence. The teachers and principals were recommend- 
ed for reappointment en masse, as their salaries are fixed 
by schedule. Yfhen it came to supervisors, it was decided 
to open the matter of salaries, a subject which had appar- 
ently been considered finally closed at last year's meet- 
ing, at which time these salaries were brought up to ^2400. 
After much discussion, it was decided that supervisors' 
salaries remain as they were .because it would not be 
fitting to increase them in face of a serious cut in the 
salary appropriations by the Board of Estimates. After 



-15- 

this decision had "been reached, it was announced that a 
supervisor of penmanship had been employed at $2500 per 
year. Therefore, in order to preclude "dissension in the 
ranks of supervisors", the salaries of the supervisors, 
eight in all, were raised $100 per year each. 
Motions for salary increases for clerks, ranging from $5 
per month to $100 a year, were entertained and passed 
without a moment's discussion as to the standard rates 
paid by other branches of the Board of Education. Sten- 
ographers in the Superintendent's office are paid as high 
as s*^100 per month, vhile stenographers in the business 
offices receive a maximum of $75 per month. The differ- 
ences in these salaries may be equitable, but the com- 
mittee in fixing salaries apparently did not give stand- 
ards of payment a thoiight. It was concerned with spending 
money appropriated in the teachers' fund and did not 
concern itself with other funds of the Board of Education. 
This is a splendid example of lack of coordination among 
the committees of the Board of Education. Each committee 
works independently of the other and is concerned with 
its business only. 

In considering the salary of an efficient clerk, it w:.s 
moved that the salary be increased $100 a year. Evident- 
ly, this clerk was very efficient, because discussion of 
her merits continued and resuljied in a motion for a v200 
increase by another member. The first motion for the $100 
increase was withdravrn and bhe second adopted. 



-16- 



The granting of these increases was considered bj? the 
committee as procedure on a "business basis", but it was 
evident to an observer that the members of the committee 
were not appropriating the funds of a '^business" corpora- 
tion of which they were the Board of Directors and in 
which they had a financial interest. 

A typical example of how committees promote inefficiency 
in the schools is found in the following instances: 

The Superintendent was asked by the Teachers and 
Schools Committee to furnish the names of incompe- 
tent teachers, that they might be dropped. He, very 
conservatively, chose four teachers who were consid- 
ered hopelessly incompetent by him and by his assist- 
ant superintendents, and asked these teachers for 
their resignations. Three of them acceded to his 
request, but the fourth, apparently the most incom- 
petent, and one who had been tried out in school 
after school under varying conditions, refused. 
Further, she interviewed members of the committee, 
with the result that the Superintendent' s recommend- 
ations were overruled and she was reappointed with 
the proviso that she be dropped at any time if she 
now proves incompetent. This action of the committee 
accomplished two things, - it saddled the system with 
an incompetent employe and helped demoralize disci- 
pline because a teacher had "put one over" on the 
Superintendent, 



- 17 - 

Instances where members of this committee recommend 
persons for appointment or promotion occur at every 
meeting at v/hich appointments come up. Some of the 
inspectors seem to have an inexhaustible supply of 
candidates for all kinds of positions; they follow 
actual vacancies, possible and probable vacancies, 
and probable creation of new positions in new schools, 
with as much care as does the Superintendent^ they, 
as laymen, speak of "strong" teachers with as much 
glibness as do the assistant superintendents, and 
under different circumstances, their zeal and interest 
would merit commendation. The usual formula used by . 
an inspector in introducing a protege is "of course, 
Doctor, you know better, and I do not want to inter- 
fere, but I should like to see Miss X given tiis 
position; "or, "Don't you think Miss X is a v'^rong 
teacher and should be given this position, :f possi- 
ble?" They actually recommend how transfers should 
be made in order to have their "strong" teachers 
promoted. Of course, the "ward" represented enters 
into the appointment, as the ward is sacred territory 
to the inspector representing it. (Examples of this 
will be given later in this report). 
It is not intended %c aive the impression that all promo- 
tions and appointments of special teachers are initiated 
by the inspectors, nor that incompetents are recommended 



- 18 - 

for promotion, but it is asserted that more of this is 
done than should be done in the interests of an effect- 
ive educational staff, and that the best qualified 
persons are not always chosen. 

An instance of this occurred in recommending a 
young man for the position of instructor in physical 
training. The superintendent had recommended X 
as the more qualified of the two applicants, but Y 
was a resident of Detroit, and some of the committee 
thought he ought to receive the position. A com- 
promise was effected by appointing both, although' 
they could have waited six months before appointing 
the second one. 
Legally, the committee has the right to recommend appoint- 
ments, but this power should be taken from them and left 
entirely to the superintendent. It may be true that 
under present conditions he does the recommending in the 
maoority of the cases, but he does so under sufferance 
and in many instances only by skilful sug^^est Ion and by 
the help of a few of the better minded members of the 
committee. He will not appoint or promote un^^ualif led 
persons even if urged to do so, but he is prevented many 
times from promoting the one most qualified. 
At present, an aggressive teacher or principal who ^''ill 
seek the inspectors' support can gain recognition, trhile 
an equally or more competent teacher attending to her 
teaching only may be overlooked. An eligible list for 



- 19 - 
promotions should be created, and not bj' the coramittee. 

Gommittee on Te:r': 3ool-3 j:_2°^rse_of Studv - Duties. 

Administrative - 
The duties of the Comnittee on Text Books and Course 
of Study are:. 

To cause the Secretary to advertise for propos- 
als for supplying text books, apparatus, school 
stationery^.nd supplies. 

To recommend for adoption, the regular high 
school text books for such period as the state 
law may require. 

To consider all matters relative to the appoint- 
ment of subjects among the several grades, and 
the methods of instruction in the public schools. 

Legislative. 

To consider, together rith the superintendent 
and other -nrofessional help deemed necessary, 
all matters relative to the course of study and 
the introduction of nen subjects of study. 

So far as could be learned from attendance at its 
meetings since last May, and from an analysis of the 
proceedings of the Board for the past year, this 
committee spends all of its time in recommending 
purchases of educational supplies. Exceptions were 
the consideration of the budget estimates for sup- 
plies, rhlch is a legislative function, and the adopt- 
ion for trial of a new book on stenography which 
involved a change in the system of stenography. Two 
matters of policy which this committee should have 
passed upon never reached it. One was the establish- 
ing of a military company in the Northwestern High 



-20- 

School, and the other r/as the change of the course of 
study in the ni^'ht schools, from a four ni,jht a reek 
academic session to a three night academic and one night 
recreation and social session. This matter came up 
incidentally before the Teachers and Schools Committee, 
but it was not even discussed by the latter. 

Changes in the course of study should not be made 
without the sanction of the committee on Course of Study 
as long as there is such committee. 

The Superintendent submits his list of text books 
and supplementary books for all the schools, and the 
committee passes upon it without even going thru the 
titles. 

In going over the requisitions for supplies and the 
proposals for bids, the committee questions the quantities 
requested, but all this is administrative detail and 
should be left to the superintendent , rfho is responsible 
for the results in the schools. 

Committee on Supplies and Janitors - Duties . 

Administrative . 

The duties of the Committee on Supplies and Janitors 

are : 

To recommend the purchase of necessary furni- 
ture, fuel, janitors' supplies and miscellane- 
ous articles. 

To direct the secretary to advertise for 
proposals for supplying the above for the 
ensuing year. 



-21^ 

To recommend to the Board suitable persons for 
janitors. 

To recommend for appointment a suitable person 
to act as inspector and weigher of coal. 

Legislative . 

To make all rules for government of janitors. 

Inspectorial . 

To cause to be made a complete inventory of the 
movable property not included in the superin- 
tendent's inventory. 

Probably more than ^ny other oommittep, this one 
spends its time on administrative detail. It not 
only appoints janitors and engineers, but supervises 
the work of these employes; it not only authorizes 
the purchase of supplies, but actually purchases all 
the seats by looking at the samples submitted and 
choosing the one it wants, v;ithout the advice of any 
officer of the 3iard. 

The power of appointing janitors and engineers 
vested in this committee, and the methods of appoint- 
ment, undermines the efficiency of the work in the 
care of buildings, and leads to enormous rastes of 
money, because it resolves itself practically into 
a job creating function for political reasons. By 
custom, each inspector recommends all the appoint- 
ments for these jobs in his v/ard. The janitor or 
engineer is responsible to the inspector for his job 
and not to his apparent superior, the Supervisor of 



Property. The result is a treakinj dovm of discip- 
line. It happens also that a fev of the inspectors 
have political ambitions, seven of the twenty-one 
havinj teen candidates for public office in the recent 
primaries, a circumstance which at least creates the 
impression that the possession of such gifts as a 
fev; jobs for the worthy and willing might be used to 
personal advantage. 

Typical examples of the manner of de'^ling with 
the problem may be had at any meeting. The follow- 
ing ones occurred on May 23, 1916: 

A letter was read from the principal of one of 
the schools that the janitress in the building 
was stirring up mischief and was undesirable. 
It was decided by the committee to allow her to 
serve out the remainder of the school year , up 
to the middle of June, because, as the chairman 
remarked, "It is Inspector X' s appointment and 
we ought to do as he asks us". 

The case of the janitor in the Wilkins School 
was brought up. This man, some time ago, had 
been taken off the pay-roll by the Supervisor, 
but reinstated by the Committee, and now was 
again in trouble. It was agreed that he was 
absolutely hopeless' and should be dismissed, 
but action was' postponed until the newly 
appointed inspector for that ward, Mr. Gordon, 



-23- 
would take office, because, "He oujht to have a 
voice in the matter". Not even a hopeless incom- 
petent could apparently divert the committee from 
its adherence to time honored custom. 

At a meeting of June 6th., the committee voted to 
dispense with the services for the evenint^ sess- 
ions, of the engineer in the Bishop School, because 
the heating of the building was discontinued. The 
Supervisor was not present when this was done. At 
the same meetirig a letter from an inspector was read 
recommending a protege for the position as engineer, 
when the need should arise. 

In buying seats, the committee goes into the base- 
ment of the Board of Education building, looks at 
the samples of the desks and decides upon the one 
wanted. Neither the Superintendent, Supervisor 
of Property , nor the Medical Inspector is there to 
advise them, nor is their advice sought in the 
matter. 

Gommittee on Real Bstate and School Buildings -Duties. 
Administrative, 



The duties of the Committee on Real Estate and School 
Buildings are: 

To examine into and report upon the desirability, 
value, and titles of all lends to be purchased, 
and of all leases of buildings. 

To have general oversight of the construction 
and finishing of buildings and of all necessary 



- 24 - 



sewers, out-buildings, fences and sidevv-alks. 

To examine into and report upon the necessity and 
desirability of repair, alterations and improve- 
ments in buildings or their appurtenances and to 
have supervision of same. 

To have charge of insuring property. 

Legislative . 

To examine into and to recommend plans and speci- 
fications of new buildings. 

Inspectorial . 

To make an annual report upon; 

Real Estate orned by the Board, toget?ier v;ith 
the estimated value in detail. 

The number of school buildings together with 
the number of rooms and school sittings in 
each. 

The number of unoccupied lots ovmed by the 
Board. 

The buildings or rooms leased by the Board, 
together vith the duration of the leases, 
names of lessors, and amount of rent. 

Such other information as they deem of valixe 
to the Board. 



This Committee transacts more business than any 
of the others and plans the e:<penditure of more money 
than any other committee - $1,348,835 for the year 
1915-16, and $2,175,537.50 for 1916-17, It is true that 
the Committee on Teachers and Schools has under its 
jurisdiction a much larger appropriation, but the 
greater part of it is expended under an established 
schedule for teachers' salaries. 

Hov.'ever, sccording to the by-laws quoted above, 
most of the work of this committee is admanistrative. , 



- 25 - 

The committee follows the reconmendation of the superin- 
tendent as to the need and location of a building; it "buys 
the site upon the recommendation of a real estate agent 
hired by the Board, and as far as observed, such recommend- 
ations are never questioned; it passes upon major repairs 
to be made, but has no control of the repair work done, 
because of the lack of a system of records and reports; 
and it follows the progress of buildings and calls in the 
contractors to hear the reasons for delay. All of these 
details are attended to by a committee of seven laymen 
meeting once every two weeks, or more often, if necessary. 

Sound business demands that the spending of so 
large a sum of money should be given close and continuous 
attention by some one person who can coordinate the loca- 
tion and purchase of sites and the work of the architect, 
engineer, and supervisor of property with the education 
of the children, for which purpose the buildings are being 
erected and maintained. In attending the meetings of 
committees, the impression is gained that the end for 
which meetings are held and money expended is the buying 
of supplies, hiring janitors and engineers, and erecting 
or repairing buildings, rather than the education of 
children. 

Even a superficial study of the transactions 
of this committee shows - first, that administration of 
details by seven laymen ^'ho meet at stated periods is a 



- E6 - 

failure, and seccrrdly, that a coiJjrdinating head is absolute- 
ly necessary. The following typical instances illustrate 
the weaknesses in the present state of affairs; 

The frinciral of the Northwestern High School had 
the hoods in the chemical laboratory vifired by the 
Hiram Matks Electrical Company, for which a bill 
of $62.46 was submitted to the Supervisor of Prop- 
erty for his approval. He thought it was excessive 
and refused to pass it, whereupon the Hiram Marks 
Company sent the .bill to the secretary. The latter 
took it up with the Real Estate and Building Committ- 
ee on Jan, 11, 1916, at which time the bill v/as 
allowed. Extracts from the proceedings of the Board 
of Education show that on - 

Ian. 13, 1915 - The Committee on Real Estate and 
Buildings recommends that the Hiram Marks Electric 
Company be paid the sum of $52.46 for wiring. - 
carried. 

Jan, 27th., 1915 - The above motion was reconsidered 
and was referred back to the committee. 

Feb- 10, 1915 - The committee reports that the bill 
of |52.46 is excessive for the work done and recom- 
mends that the Hiram Iferks Electric Company be 
tendered the sum of $45.00 for the work done.- 
carried. 

The above is an instance where the committee without 
the advice of the Supervisor of Proprty, who is directly 
in charge of all repair work, acted upon a matter of which 
it had no knov/ledge. Furthermore, it should not have rec- 
ommended payment Without the Supervisor's approval. 

An ap-oropriation of $15,000 Was made for special 
furniture for the Northeastern High School, ?/hich 
included chairs for the auditorium and equipment for 
the lunch room. The principal of this school sent in 
a requisition for what were apparently his needs and 
the committee authorized the architect to draw plans 
for the furniture, the cost of v^rhich was $14,005.88, 



- 27 - 

After the contract v-as avfarded, the principal of the 
school requested auditorium chairs and lunch room equip- 
ment, items which should have been included in the 
original requisition. The purchase of the auditorium 
chairs at $2267.50 necessitated a transfer of money to 
the fund and now, even with a transfer of funds, there 
Is no money for equipping the lunch room so that it may 
be used. 

Had there been somebody to catch that first mistalre of 
the principal, adjustments could have been made by eliminetin^i 
the less important furniture so that the lunch room, an 
important feature of the school, could have been equipped. 
The principal worked directly with the committee instead of 
thru the Superintendent, and the committee proved that it 
was incapable of administrating properly. 

An instance in the purchase of sites will be illuminat- 
ing: 

On June 6th., 1915, Mr. Barry, the real estate agent 
of the Board, was instructed to procure options on a 
225 ft. site, north of Poplar and bet?;een 15th. and 
16th. Sts. at a cost of about I'eg ,000. 

On June 8th., 1916, Inspector Maybl e of that ward 
appeared before the committee and suggested a 210 ft. 
site south of Linden St. between 15th. and 16th. Sts. , 
a block south of the other, and which could be had at 
a cheaper price. 

On June 20th., 1916, the newly recommendec" site being 
satisfactory, Mr. Barry was instructed to get options 
on it. The cost proved to be $57,850, as against 
$69,000, the probable cost of the first site chosen by 
the committee. 

This cheaper site might easily have been overlooked, 

and it would seem that a person on the job continuously for 

the purpose of purchasing would secure most effective results. 



- 28 - 

A flagrant violation of ordinarj? business manage- 
ment is to be found in the folloving case where the comv 
mittee leased out a block of 13 houses and a stable for 
$450 per month which formerly brought ^^865 per month. 
These houses came into the possession of the Board with 
the acquisition of a site for the Cass High School, a 
site which will not be used before another year. This 
was inexcusable, even for short tine periods, with the 
present demands for houses in Detroit. However, the 
crowning touch to the transaction was the leasing back 
by the committee of the property at 166-168 High Street 
for vl50 per month which formerly leased for approximate- 
ly $100 per month. Fortunately, this last act was re- 
considered, after it had passed the committee, and the 
house was secured for $100 per month, with one useless 
furnace. It is almost impossible to follow the psychol- 
ogy of such procedure. 

It must be borne in mind that this committee 
spends over $2,000,000 a year and has the supervision of 
buildings and property worth about $15,000,000. 

4 - Character of Discussions . 

Since practically all of the committees' time is 
taken up with administration, the discussions at the 
meetings are necessarily limited to consideration of a 
mass of administrative routine. V/ith meetings lasting 
from fifteen minutes to two hours, once every two weeks, 



-29- 

except in the case of the Real Estate and Buildings 
Committee, little time is left for careful consideration 
of broad general policies. 

An observer could not but be impressed by the lack 
of constructive discussion and the lack of information 
upon which discussion is based at the committee meetings. 
;;?hi3 is not an indictment of the individuals comprising 
the various committees, but of a system which permits an 
organization to be administered by laymen who come to- 
gether periodically, and of a practice by which problems 
are presented, discussed and decided at these periodic 
meetings - for the greater part at the same meeting. 

As no information could be obtained from minutes, 

the following instances were noted thru attendance at 

committee meetings: 

May 24 ,1916 : The Committee on Text Books and Course 
of Study was authorizing the purchase of supplies 
, ' for the Manual Training Department for the ensuing 
year. The Supervisor of Manual Training was asked 
as to the need of the particular quantity specified, 
and the answer was that there would be an increase 
in the number of pupils, but no data were presented 
to the committee to show how large the increase 
might be; how large it was in the past year; in fact, 
not a definite figure entered the discussion. The 
purchase of scissors might be taken as a typical 
example . 

A member of the committee was asked whether the 
quantity reqtiested was due to an increase in the 
number of pupils or to the loss incurred during the 
year, and the reply was that the probable increase 
in the number of pupils was the basis of the request, 
and that the loss was negligible. But how much was 
due to one cause, and how much was due to the other, 
what the increase in pupils would be, and v;hat the 
loss during the year might be, was not given. 



-30- 

June 7th., 1916'. The same committee, in authorizing 
the purchase for lumber, raised the question as to 
whether this commodity might not be bought in larger 
quantities at a better price. The order in question 
was 200 feet, for which only one firm bid. The 
question raised was a legitimate one, but that Is 
where the whole matter ended- Wo attempt was made to 
follow it up. 

The order for five Pathescopes was passed by the 
committee, but before authorizing it the question 
was raised as to the necessity of these machines. 
The Superintendent was obliged to relate, for the 
third time, the history of the transaction from the 
beginning. 

June 5th., 1916: The matter of increasing the salary 
schedule of attendance officers to that paid teachers 
of ungraded classes came up on this day. The question 
was discussed pro and con, and the points about which 
the discussion revolved were whether attendance offi- 
cers should get as much money as the teachers in un- 
graded classes, and what were the chances for advance- 
ment in this fields but the basis points of qualifi- 
cations necessary for these two grades of positions 
and comparative duties of these employes were not 
discussed- Nevertheless, at the end of fifteen 
minutes discussion, the salary of attendance officers 
was increased. 

June 20'ch. , 1916: At this meeting, the Committee on 
Janitors and Supplies discussed the rate of pay for 
engineers who work four hours over-time, daily, 
during the summer months, in schools where the Recre- 
ation Commission conduct playgrounds. The rate of pay 
last year was $1.50 for these four hours, but this 
year the engineers demanded more, and the Superin- 
tendent of Property fixed the sum of sixty cents per 
hour which should be paid by the Recreation Commiss- 
ion. This was a^.;^r.ien"clv too high because even some 
of the members of the committee objected. The dis- 
cussion centered about the fact that the ertra four 
hours would make too long a day for the engineers, 
who begin their work at 7 A.M. and work until 4 P.M. 
for the Board of Education, and that sixty cents an 
hour was not too much for this over-time ' Not a 
question was raised as to the duties of the engineers 
during the summer months - whether such duties might 
not permit engineers to shift their hours so that $hey 
need not wort more than eight hours including the 
four hours spent in watching the building while the 
playground session was in progress. 



- 31 - 

The attitude of the merahers seemed to "be that they 
might as uell do the best in their power for the 
engineers because the Board of Education v/ould 
not settle the bill, and as one man expressed it, 
"Let the Recreation CoraiTiission pay for the services 
if they want them". It might be noted that a settle- 
ment v;as reached outside of the coiTirnittee, placing 
the rate of pay at $13. 50 per week. 

It is not uncommon for this committee to spend its 
time in planning appointments and transfers of 
janitors and engineers. One meeting this simmer 
v/ould be called almost a v/rangle over such transfers 
■antll all the members of the committee v;ere satisfied 
that their proteges were properly placed o 

August 23rd: In trying to decide v;hether the moving 
of the manual training machinei-y from the George 
School to the Nordstrum High School should be done by 
contract or by the Board of Education, the Committee 
on Text Books and Course of Study v;ent so far into 
the discussion of moving the machinery, that the next 
step ¥70uld have been actually to move it . Instead 
of obtaining the advice of the Supervisor of Manual 
Training 'on the proposed liid by a private firm v;hich 
was considered too high, the ^o-raraittee sat in the 
office discussing the details of moving it. 

The above ex:«jnples -serve to illustrate the character 

of discussion which consumes the time of the committees 

v/hen discussion occurs « As a rule, hov/ever, there is 

almost automatic concurrence v/ith the recommendations of 

the Superintendent or the Supervisor of Property or of any 

other employe v;ho brings u-p matters before the coj-rnittees , 

5, - Consideration of Annual Budget EstimateSo 

V/hen the estimates are tu.rned in hv- the dep:-rtment 
heads, the respective commit teos usually hold special 
meetings at which the estimates v/hich come under their 
jurisdiction are discussed. These meetings, according to 
the Secretary and the Chief Glei-k, are completed at one 



-32- 

sitting, the longest of them lasting not more than three 
hours, at the end of which time the committee is ready to 
make its recommendation to the Board of Education. 

Changes in the estimates as presented by the depart- 
ment heads are practically never decreased. They are 
increased, if changed at all. 

The committees do not receive sufficient information 
to allow them to pass judgment upon the justifiability of 
the requests. The members do not even receive copies of 
the estimates as they are submitted. At the meetings the 
secretary reads the items of the estimates, and the super- 
intendent, or the supervisor, or the secretary, as the 
case may be, is prepared to answer any Questions which may 
be raised. 

As no members of the Bureau were present at any of 
these meetings, the facts concerning them were gathered 
from interviews and from whatever records were available'. 
The chairman of one committee admitted that he left the 
"details" to the em^ployees of the board, but also admitted 
that the information presented was too meagre for a proper 
understanding of the needs of the schools, and that he;: 
would demand more information if requests for sums of 
money were made in his own business. The chairman of 
another committee, ?/hen shown a copy of the estimates 
presented his committee, stated that he h'd no recollect- 
ion of having before this seen the statement. It was read 
to the committee by the secretary. 



■ ' -33- 

It is possible that considerable discussion and 

questioning takes place at the committee meetings, but it 

does not seem probable that such is the case vhen the 

members of the committee do not see the estimates before 

they attend the meetings and then only do they hear the 

total amounts read to them. 

The request for |50,000 for fire escapes seems a 
good example of the lack of consideration given the 
estimates. The request for this -.mount originated 
with the Real Estate & Buildings Committee in this 
ease. The supervisor, being asked how much fire 
escapes for the Doty School would cost, estimated the 
cost at llOOO , and as there were 50 buildings needing 
fire escapes, it was decided to ask for |50,000. 

Another instance of lack of consideration in the 
action by the Committee on Teachers and Schools in 
raising salaries in face of a cut of $195,000 by the 
Common Council and Board of Estimates in the original 
request of teachers' salaries. It seems that if the 
Committee had given the original estimate the con- 
sideration it deserved, it could not have seen its_ 
way clear to increase salaries not contemplated orig- 
inally. 

6 . Summary of How Committees Work. 

In summarizing the work of the committees, the state- 
ment that practically all the time is being spent on admin- 
istrative details covers the faults that are to be found in 
the prevailing system. This is not the fault of the com- 
mittees, as they are merely taking advantage of the duties 
prescribed to them in the by-laws of the Board of Education 

With a mass of details placed before them meeting 
after meeting, it is little wonder that the perspective of 
the committees is warped and that they are unable "to see 



-34- 



the woods because of the trees". All items of business 
seem on a par and are treated as equally important, and 
with the same mechanical concurrence. Discussions are ' 
neither vital nor pertinent. The authorizing of a small 
purchase may consume more discussion and more time than 
the purchase of a site for a school. 

Initiation of legislation, a proper function of the 
committees, is pushed into the background because of atten- 
tion to details* Individual salary increases will be 
discussed year after year without any comprehensive plan 
being consummated to standardize salaries; details of the 
construction of buildings will be supervised, but no in- 
tensive study of h07/ to meet Detroit's growing need for 
schools so as to relieve future congestion will be consid- 
ered. 

Advantage is not being taken of the inspectorial 
powers and duties conferred upon the committees by the 
by-laws. Questions may arise as to the value of education- 
al research and the benefits to be derived from continuing 
this department, but it has not been observed during all 
this discussion that any requests were made by the proper 
committee as to the accomplishments of this department for 
the past year. 

In passing upon the annual budget estimates, the 
most important piece of legislation for the year, the 
committees do not seek enough information to warrant their 
recommending the appropriation of hundreds of thousands 



-35- 

of dollars. 

Inefficiency is promoted by the present system 
because: 

1. Committees have the power to appoint employes, 
and, in the face of political ambition, such 
patronage may be used indiscriminately. 

2. Transactions are hel«^ up until committees meet, 
in order to receive authorization to act. 

3. Laymen meeting periodically are not in sufficient- 
ly close touch with affairs to act with their 
best judgment upon administrative details. They 
must either take the advice of an officer of the 
Board or else r <?t upon their ovn initiative. In 
one case their consideration is superfluous, and 
in the other it is likely to be erroneous. 



Ill - BOARD OF EDUCATION - PROPER 



1. - General 

It hcs been shov«i thus far, thct 

1, The Bocrd of Education has heen granted full 
pov/ers by the State law to conduct the affairs 
of the schools of this City. 

2, The Board of Education has three functions, - 
legislative, inspectorial and administrative. 

3. The legislative and inspectorial functions 
belong properly to the Board of Education it- 
self, while the administrative function belongs 
to its professional employees o 

4. Under the law, the Board may itself assume 
all these functions, or delegate them to its em- 
ployees. By its rules, the Board has assumed, 
through its Committees, administrative functions. 

In this section of the report, will be discussed the 

relation of the comiiittees' action to the Board of Education 

as a whole, and the effect of the acts of both of these 

bodies on the administration of the schools of Detroit, 

E. - Meetings of the Board 

"Regular meetings of the Board are held on the second 
and fourth Thursday evenings of each month, except v/hcn 
legal or special holidays = In such cases the Board desig- 
nates the night on which the session shall be held." 

During the year ending July first, 1916. the Board ^of 
Education held twenty-four regular meetings and three 
special meetings, - an adjourned regular meeting being 
counted as a special. During this period, the meetings 
lasted from fifteen minutes to two hours and thirty minute? 



37- 



each. The total time for the regular meetings heing 
eighteen hours and forty minutes, or an average of forty- 
six minutes per meeting. The average duration of a special 
meeting was tv/enty-five minutes, one of them lasting for 
only ten minutes. 

The attendance at meetings is good, there being an 
average absence of three members for the regular meetings, 
and six members for special meetings. The follov/ing table 
shows this matter in detail: 



38 



Tabic of 

REGULAR Iv3STIlIGS 0? THE BOARD 
Shov/ing AbscncG of Mcm'bcrs 
Df.ring Year Ending 
June 30, 1916 











Time 


1915-16 


Absent 


Called 


Adjourned 


Consujiiod 


July 1 





12 -.,00 


1:00 


1:00 


July 22 


1 


8:45 


9:30 


0:45 


Augo IE 


3 


5:15 


6:00 


0:45 


Aug, 26 


7 


5:30 


5:50 


0:20 


Sept. 9 


1 


5:10 


7:40 


2 : 30 


Sept. 23 


9 


8:05 


9:15 


1:10 


Octo 14 


1 


8:15 


9:30 


1:15 


Oct. 28 


3 


8:15 


8:40 


0:25 


IJov. 11 


2 


8:20 


8:-35 


0:15 


Nov. 23 


5 


8:15 


8:35 


0:20 


Dec. 9 





8:10 


9:15 


1:05 


Dec. 23 


3 


8:15 


9:30 


1:15 


Jan, 13 


5 


8:30 


9:10 


0:40 


Jan. 27* 


1 


8:25 


9:15 


0:50 


Pe"b. 10 


1 


8:30 


9:00 


0:30 


Feb, 24 


1 


8:05 


8:30 


0:25 


Mar = 9 


4 


8:05 


8:25 


0:20 


Mar. 23 


3 


8:20 


8:45 


0:25 


Apr. 13 


5 


8:05 


9:00 


0:55 


Apr. 27 


2 


8:10 


9:00 


0:50 


May 11 


2 


8 : 20 


8:50 


0:30 


May 25 


4 


8:30 


9:00 


0:30 


June 8 


5 


5:45 


6:10 


0:25 


June 22 


5 


' 5:00 


6:15 


1:15 




Total Absent 


72 


Time GonsiiniGd 


18:40 




Average 


3 


Average 


0:4S 2/S 




OTHER 


THAil REGULAR MEETINGS 


Time 


Sp.G.cif't.l 


Absent i 


2fxil?i 


Adjourned 


Consuj'aod 


A-pr« 21 


10 


12:25 


12:35 


0:10 


Apr. 29 





12;15 


12:40 


0:25 


Adjourned 










Idar .. 1 


9 


8:00 


8:40 


0:40 




Total Absent 


19 


Time Consumed 


0:75 




Average 


6 1/S 


Avei'age 


0:25 



Meetin;-' at which budget reouoBor.''-were considered 



- 39 - 

Typical Board Meetirifi-s 

The follov/ing is the order of business of the meetings 

of the Board of E6.uc3tion: 

1. Reading of minutes of the last meeting 
or meetings. 

S, Special Order, 

3. Unfinished business. 

4. Reading and referring of communications 
from the President. 

5. Reading and referring of communications 
from the Secretary. 

6. Reading and referring of communications 
from the Superintendent and Supervisor, 

7. Reading and referring of all other com- 
munications directed to the Board or its 
ofr'ioers. 

8. Reports of Qommittees. 

In accordance with the above procedure, the President 
conducts the meeting. After the first three items have 
been passed, the Secretary commences to read communications 
and resolutions in the order designated above. It is 
noted that the haste with which items are read ( and per- 
haps must be read) makes it almost impossible for an 
audience to understand the nature of the business before 
the Board, It is possible that continual attendance at 
the meetings by the Board members, develops their ability 
to grasp detail?, but it wovild seem that even they would 
find '''''f iculty in following the contents of communications 
and resolutions. 



- 40 - 

After the reading of each resolution, the president, 
with mechanical regularity, utters the formula "adopted, 
if no ohjection" and there oeing no olDJection, as a rule, 
resolutions adoiot themselves, 

For the year ending June 30th, 1916, out of 1266 items 
passed by the Board, 1S39 vi/ere passed in this manner, ap- 
parently v^ithout objection by any member of the Board, 

It is difficult to determine the specific responsi- 
bility, but the fact remains that the meetings, which 
last on an average of forty-six minute?., are monotonous 
and dull. If it is a trial, to one who attends ox his 
own free will, to sit thru a meeting, what must it be to 
those v/ho are obligated to attend them regularly. It 
is not to be expected that men will be interested meeting 
after meeting in hundreds of details and items authorising 
purchases and payments of bills, and granting permission 
to use the school building, or in hearing the lon-^; list 
of resignations, transfers and appointments o± employees. 

While the dialogue between the president and Secre- 
tary is being carried on, the Board members, some listen- 
ing, some talking and others reading, sit there in a 
listless and uninterested attitude, altho occasionally 
an inspector, interested in a particular item,, will make 
a comment which may open a discussion on some subject. 



- 41 - 
An indiscriminate choice of items selected from tlie pro- 
ceedings during the past year illustrates the character of 
husiness brought hefore the Board: 

Page 296 t Rehate of tuition fee of ;a»95. Pupil 
attended school one v»;eelr. Deduct 65^^ 

Page 301: Purchase hand rail and charge to Recreation 
ComiTiission, v3»00. 

Page 301: :.di ZOi to the price of,, a hook, also change 
the price of another hook to read $1.50 f.Ooh. 
Chicago instee-d of f.Oohc Detroit » 

Page 373: Renev/ Suhscription for .Vraerican Journal of 
Puhlic Health, OS.OO. 

Page 374: Allow additional araotuit for marking gauges, 
70^. 

Page 476: Purchase program for entertainments of 
pupils in the grammar and elementary grade, ^6<.50« 

Page 361: Authorizing the Super'/iCOSr' to civUiS© ^^^-^ 
position of the intercommunicating telephonti in the 
lunch room of the Worthv/estern High School « This item 
takes up three inches of fine tjrpe , the width of a 
nev/spaper column » 

Page 383: Committee on Janitors and Supplies recom- 
mends that the engineer from the MacMillan High School 
he transferred to the Nordstrum Junior High School. 

Page 385: By a roll call vote, the above rnotion v.^as 
reconsidered, and the matter v/as referred hack to the 
committee v;ith pov/er« 

With page after page of such items to he considered, it 
is littl9 v\^onder that there is a lack of interest, and that 
there remains very little time or desire for the considera- 
tion of fundamental policies. The Superintendent, the 
Architect, the Engineer, the Supervisor of Pi-operty and 
Corporation Counsel are all present at the meetings and a.re 
ahl* to furnish information when an occasion arises. 



42 - 



3. Sources of the Business of the Board. 

In the three daj/s, Monday, Tuesday, and Wednesday 

preceding each regular meeting of the Board, the standing 
committers hold their meetings and transact the business 
which is taken up at the regular meeting of the Board 
held on Thursday night. Resolutions adopted by the 
committees are prepared for ^oresentati on in the offioei' 
of the secretary and superintendent, the latter actifag 
as secretary for the Committee on Teachers and Schools. 

In addition to the resulutions of the standing 
committees, are communications from special comm.ittees, 
employes of the Board, and petitions from the public. 
The following table gives the number of items of business 
and communications presented to the Board for the half 
year ending July 1st., 1916« 



- 43 - 
Sources of the Board's Business 



Committee Uo. Items 

Judiciarj^ 9 

Teachers and Schools 76 

Text Books and Course of StucLj 203- 

rinance 29 

Real Estate and School Buildings 118 

Supplies and Janitors 100. 

Sanitation 

Rules 

Special 4 

Of the whole 1 

Superintendent 26 

Supervision 2 

Secretary 12 ' 

Consulting Engineers 6 

Consulting Architects 5 

Memhers, - resolutions hy 29 

Petitions from public 17 

Corporation Counsel 3 

President of Board 3 

City Accountant 1 

Public 2 

Mayor 1 

647 



Summary 

76o825j Prom four main standing committees 
5.88^ Erora four other standing comitittees 
0,77% From special committees 
7,88^ Erom employes of the Board 



Superintendent 
Supervisor 
Secretary 

Consulting Engineer 
Consulting Architect 

4o48^ Erom members at meetings 
0.45% Erom corporation counsel 
3.53% Petitions from public 
1,08% Miscellaneous 



26 
2 

12 
6 

5 



497 

38 

5 



51 

29 

3 

17 

7 

647 



- 44 - 

4. - Mo Calendar of Meetings . 

All resolutions and comrauni cations are presented 
to the Board of Education through the secretary, who 
reads them at the meetings of the Board. A calendar 
showing Vv'hat business will he taken up is not prepared 
prior to the time of meetings. This defect is a serious 
one and destroys the value of the Board meetings be- 
cause - 

1. Of the twenty -eight memberships on the four 
committees which transacted 76.88 percent of the 
Board's business during the last six months of the 
year 1915-16, only eight inspectors have as many 
as two memberships and twelve inspectors have no 
more than one. 

2. The average duration of a meeting within the 
last year was only forty-six minutes. 

3. It is difficult to follow the secretary's 
reading of the items of business* 

4. Inspectors are likely to be absent from their 
committee meetings. 

This means that not until the meetings of the Board 
of Education are opened do the majority of the members 
know what measures they will be called upon to decide, 
except those which have been presented by their own 
committees, - if they happened to be present at the 
last meeting of the committee. 

Under such conditions it can hardly be said that 
the Board of Education is a deliberative body, and that, 
as a whole, it gives its business that consideration, 
which the affairs of a corporation spending five or more 
million dollars a year, and being responsible for the 



- 45 - 

education of over eighty thousand children, demands. 
5 . Consideration Given Business. , 

The following tables show the items and character of 
the buainess which was up before the Board during the 
past six months: 

Table Showing ItftTri.s and Character of Business 
Considered by the Board During Six Months 
Ending June 30, 1916. 

LEGISLATIV3 . 

Educational 



Changing Rules 2 

Formation of military company 2 



Finance 



Transfer of Funds 14 

Borrowing money 1 

Adopting salary schedule 7 

Budget estimates 18 

Payment of janitors in social centers 1 

Deed property to city 1 

Salary increases 2 

Appropriations for special objects 4 



General 



Evening school calendar 1 

Non-vaccination rule 1 

Annexation to school distric* 2 
Resolutions of condolences, representation 

at conventions, etc. 12 

Adopting form of contract 2 

Addition to schools 1 

Manner of accepting buildings 1 

Changes in plans of construction 8 

Employing extra clerks 2 

Retaining cleaners during summer months 2 
Placing elementary schools on high school 

basis 2 

Additions and corrections to minutes 13 

Condemnation Proceedings 10 

Total 109 



- 46 - 

INSPECTORIAL 

Reports 38 

Investigation of Schools 2 

Appointing engineers and architect S 

Releasing contractors from contract 1 

Elimination of Courtis Tests from 
Superintendent's reports 1 

Total 44 



- 47 - 

ADMINISTRATIVE 



Finance 



Raising salaries according to schedule 8 

Authorizing payment of hills . 69 
Purchases 211 

Rebate and refund tuition 9 

Allowing additional amounts on purchases 13 

Traveling expenses 5 

Miscellaneous 6 

Educational 

Appointment, assignment, and transfer of 

teachers 25 

Resignations, leave of absence of teachers 12 

Adoption new books 5 

Certificates granted to teachers 2 

Diplomas granted to graduates 2 

Maintenance and Care of Buildings 

Repairs and construction 15 
Appointment janitors, engineers, caretakers, 

Coal Inspector, etc. ^ 19 
Leave of absence caretakers , engineers, 

janitors, etc. 4 

Transfer janitors, engineers, etc, 4 

Change position of telephone 1 

Petitions and Requests 

Use of school buildings and grounds by public 14 
Use of school buildings and grounds by public 7 

Present portraits to schools 3 

Miscellaneous 4 

General 

Exchange typewriters and duplicators 7 

Advertize for bids 7 

Granting lunch room privileges 1 

Renew subscriptions to publications 4 

Miscellaneous 5 

Total- 462 



- 48 - 

Out of 615 items, 462, or 75^., were matters relating 
to administrative detail; 44, or 7^, were of an inspectori- 
al nature; and 109, or ISfo, dealt with legislation. But 
of these legislative policies, there vas but one v/h'ch 
dealt with education; that of forming a military company 
in one of the high schools. 48 items referred to finance; 
and 18 related to the Board itself - such as voting condo- 
lences, passing resolutions of sympathy, appointment of 
committees, etc. 

The table showing the number of votes indicates that 

the meetings of the Board of Education are merely a mechf. r.- 

ical concurrence with the recommendations of the various 

committees. 

Table Showing Votes on Measures 
gassed During Year Ending June 30, 1916 . 

Passed unanimously - No roll call - 1239 
Passed unanimously - with roll call - 10 
Split vote - with roll call - 17 

Total number items passed 1266 

In the meetin^which were attended since last May, 
the most fruitful discussion noted occurred at the meet- 
ing of June 22nd. when the question of the reappointments 
of Mr, Curtis, the Supervisor of Educational Research, and 
that of a teacher recommendec" for dismissal by the Super- 
intendent, were considered. The discussion here lasted 
forty minutes, at the end of which time both these persons 
were retained, one on the recommendation of the Superin- 
tendent, the other against his recommendation. During 



5r^J 



* 49 - 
this discussion, the attitude of the Board was summed up hy 
one of the inspectors v;ho stated that if the Board of 
Education was not allov/ed to run the schools - i.e., 
pass judgment upon the fitness of employes - there was 
no need for a Bocard of Education, and that the members 
might as ?/ell resign.. This is undoubtedly an erroneous 
impression of the Board's duties. There is a definite 
need for a Boa,rd of Educo-tion, hut there is also a defin- 
ite province for the exercise of its functions. In this 
instance, it should have supported the Superintendent in 
his desire to retain only such teachers as m.eet the cuali- 
fications set by the Board of Educationo 

A notable instance of the lack of consideration given 
important subjects is illustr-ated by the action of the 
Board of Education in the matter of building an annex 
to the Cass Techjnical High School, In its annual budget 
estimates last January, the Board of Education requested 
^450,000 for an addition to the Cass Technical High 
School. This amiount v/as reduced bj^ the Common Council 
to ('.250,000, a suiii evidently considered insufficient by 
the Board of Education, because pla.ns for the new building- 
were not authorized. In June, the committee on Real Estate 
and Buildings, after a visit to technical schools in the 
eastern cities, recommended to the Boa.rd of Education that 
a building should be constructed of not less than six 
stories in height, evnd to cost a.bout one million dollars, 
and that the additional monej?- necessary 



-> 50 - 

should be requested in the next j'ear's budget estimates. 
This action on the part of the corairattee sho?/s plainlj? 
that the character of the addition to the Cass High School 
was not given adequate consideration either by the coriraitt- 
ee or by the Board of Edu-cation, because the original 
request of $450,000 was apparently deemed sufficient, and 
it is reasonable to suppose that if this amount had been 
granted, the Board of i^aueation rould have authorized the 
construction of the nev; building. It proves also that the 
Board of Education concurs blindly with the recoFimenda- 
tions of its committees. 

6. Consideration of Annual Budget Estimates. 

At a meeting of the Committee of the Whole, the Board of 
Education considers the estimates as recommended by the 
individual committees. The estimates are read item by 
item, and if no objection is interpo:;ed , the request is 
allowed and goes through the Common Council and to the 
Board of Estimates. 

Earely are the estiF.ates decreased at this meeting. 
Eight changes were made in the estimates for 1916-17; two 
were decreases amounting to $5,500, and six were increases 
totaling $66,700. 

Judgment cannot be passed authoritatively in this 
report upon the nature of the discussion or the extent 
of the consideration given the estimates of over 
$7,000,000 at this meeting; in fact, no stronger j^dg- 
ment need be passed than to state that tlie meeting in 



- 51 - 

question was opened at 8:25 P.M. and was adjourned at 
9:15 P.M. Within these fiftv minutes the 177 items of 
the budget were read, 55 items of general routine business 
including communications, in all enough matter v/as read 
by the secretary to fill up 24 pages 6 x 9 of printed 
matter in the proceedings of the Board of Education. 

This apparent lack of consideration of the budget 
estimates by the Committee of the V/hole becomes more strik- 
ing when it becoi^es evident that a member of the Board is 
familiar 7i/ ith only those estimates which were passed upor ■• 
by the committee upon which he serves, and that unless an 
inspector attends all committee meetings, or is a member 
of all committees, he is in the dark as to the merits of 
the estimates of committees other than his own. An in- 
spector of the Board does not fulfill his duties properly 
when he votes upon resolutions , or parts of them, to which 
he is an utter stranger. 

7. - Action of Board Perfunctory. 

The unanimous concurrence of the committees' recom- 
mendations makes of the Board of Education merely a 
"rubber stamp" for the acts of its committees. In fact, it 
means that there are as many Boards of Education as there 
are committees.; that a very small group af men determines 
the policies for the city of Detroit in the matter of the 
kind of education to bo furnished the children of this 
city, salaries to be paiG( teachers and other employes, 
the number and character of the school buildings, and all 



-52- 

other matters which are delegated to the individual 
committees. 
* Not alone do the respective committees decide the 
policies Gom.ing under their jurisdiction, but what is more 
significant is that there are always one or two men on 
each committee, who, hy their greater activity and aggres- 
siveness, dominate the affs-irs of the committee, which 
means, reduced to its lowest terms, that these active 
individuals decide the policies of the Board of Education 
in their respective fields. 

This condition Is especially serious in the prepara- 
tion of the annTial budget estimates. It d'^notes that these 
individuals, or at best, individual comm.ittees, pass un- 
questioned by the Board of Education, estimates for hundreds 
of thousands of dollars. Why the particular amounts were 
requested is not questioned, and the result is that whether 
the funds are granted or not, expenditures of large sums 
of money are "olanned by a small grpup of men. Y/hat bene- 
fits may come from a large representative body are lost. 
Under the present system., selecting the personnel 
of the various committees at the beginning of the year 
becomes an unduly important power and one that is concen- 
trated in the hands of one man, the president of the Board. 

i. Disadvantages of the Ward System . 

It is natural to suppose that inspectors being chosen 
by wards will be especially interested in the district whitf. 
they represent and will try to please their constituents. 



-53- 



As has been noted, the Board of Education seems to be 
a stepping stone for a political career, and such being 
the case, it seems logical to assume that inspectors, 
especially:' those wishing to advance themselves in public 
life, will be even more anxious to grant favors to per- 
sons in their wards. These favors are not inconsiderable, 
because under the rules, the various committees have a 
right to appoint emploj/es - a right which makes itself 
manifest during the pre-election months. This fact be- 
comes more clear when it is knowh that seven members of 
the Board were candidates for public office in the recent 
primaries. 

Whether the motive has been political or other?;! se, 
power of appointmicnt in the case of janitors and engineers 
has resulted in a much overloaded supplj? of such employes 
In the schools of Detroit. The sai'ne right of recommend- 
ing persons for appointment and promotion in the education- 
al staff results in continual pressure being brought upon 
the superintendent to appoint proteges of inspectors. 

It has been observed at the meetings of the committee 
on Teachers and Schools that members of the committee will 
inform] the superintendent of certain so-called "strong" 
qualifications of teachers and principals and will ask 
for the promotion of such persons. 

Inspectors are apparently? not satisfied with merely? 
appointing emploj^es, but feel it encumbent upon them- 
selves to supervise their work. The Chairman of the 



-54^ 

Committee on Janitors and Supplies stated that if a 

janitor or engineer does not come up to the ranrk in his 

work, the inspector of the ward who appointed him \'='ill 

visit the employe and reprimand him. It is needless to 

say that such state of affairs is detrimental to the 

efficiency of the system, because a janitor feels free 

to follow his own bent so long as the inspector of the 

ward can be made to believe he is doing fair work. The 

janitor's immediate superiors, the principal of the 

school and the Supervisor of Property, are ignored, and 

they are the only ones who can judge whether or not a 

janitor is doing good work. 

The interest shown in their own wards is illus- • 

trated by the two following instances: 

Last May the reappointment of a principal consid- 
ered absolutely incompetent was being held up. 
The inspector of the ward in vjhich this principal 
worked appeared before the Committee on Teachers 
and Schools and stated that as far as he v;as 
concerned, the principal in question might be 
given another trial. In other words, since he, 
the inspector of the ward, and apparently the 
ruler of the educational affairs in that ward, is 
willing to put up with an incompetent princi'oal, 
that principal might well be given another chance. 

Manual training machinery four years old is being 
moved from the George School to the Nordstrum High 
School. During the discussion of the ways and 
means of moving this machinery, the inspector of 
the ward in v/hicli the Nordstrum High School is 
located, vigorously and repeatedly asserted that 
he would not stand for machinery being moved into 
the school in his ward until it is entirely over- 
hauled and cleaned. It is possible that the machin- 
ery did need overhauling and cle-ning, but, on the 
other hand, it was entirely probable that it did 
not. At any rate, one sitting around the table 



-55- 



at a committee mcetiav t.'._.s not the most qualified 
person in the uorld to p.^ss judgment upon the 
matter. 

The ahove o.re just two instances of irmuiaeraljle ones 
v/hich arise during the course of the year^ L^ch in- 
spector is the "patron s..int" ox his i/ard, and he seeivis 
to try to live up to thj.t position. 

9. - Relation of I.Iayor to Board. 

Every resolution or proceeding of the Board of Educa- 
tion v/herehy any liability or deht may he created, or 
originating the disposal or e;;p'enditure of property or 
money, before it can hec :me effective, must receive the 
signature of the mayor for approv.~.l<. If he neglects to 
sign the measure v/ithin five days, it goes into effect 
autorao-tically, and if he vetog it, the Board may pass 
it over his veto "by a tv;o-th^.rds vote. 

V/hile this pov;er of the mayor has not been used in 
recent years so far as can be lo .rned, nevertheless, the 
charter should be amended sd th:.t his approval need not 
be required. It delays tl^e activities of the Board of 
Education and seems to to o. superfluous checl:. 

As a member of the Bo-.rd of Estimates, the Mayor, if 
he takes full advantage of his pov/er at the time the 
annual budget is passed, h ,s :-n opportunitj^ to approve or 
disapprove the plans of the Bo .rd of Education for the 
ensuing year by studying the progrun which the annu-.l 
budget estim .tc3 of the Boord represent. 

VJhile it doe;3 no good, the :i..yor's po\;er of veto m.a- be 



- 56 - 

a detriment to the cause of education in this city hy 
tying up the Board of Education vvith City Hall politics^ 

In view of these facts, it is iJeconraended that the 
school law in this regard he changed. 

10. - Suji-mia-ry of How the Board Works. 

1 - The Board of Education transacts its business 
through standing coininittees which have under their divided 
jurisdiction three distinct and independent departi.ientr. , 
in direct charge of the superintendent, the Supervisor oi 
Property and the Secretary. In addition t^.; thefje there 
are the architect and consu-lting engineers, also independ- 
ent and under the jurisdiction of the committees o 

2 - Administrativo deto-ils of these de'Dartraents are 
handled h;.^ the respective committees, and all of these 
details are passed upon hy the Board of Education. 

3 - The Board itself receives its husiness from the 
committees, officers of the Board, and from the pu-hlic 
through letters and petitions o 

4 - Uo calendar of the items to he considered is 
prepared in advance of the Borrd meeting, with the result 
that inspectors being ignorant of T/hat is to take p.la,Ge , 
cannot give the matters the necessary deliberation^ They 
know only of those things which are passed by their own 
eommiittees <, 

5 - The meeting of the Board is a perfunctory affair 
Lit v/hich the recommiend^.tions of the comu'nittees arc '^assed 



57 - 



without question and almost automatically. This condi- 
tion, added to the fact that there is no calendar, and 
that the items are read with unusual rapidity and mon- 
otony and indistinctness, means that the Board adopts 
resolutions, the nature of which is a mystery to the 
majority of the members. This is true also of the 
annual budget estimate, which totaled over seven mill- 
ions last year, 

6 - Inspectors are interested in their own wards 
and are, therefore, aggressive in trying to obtain the 
best and most for their wards. They also interfere un- 
necessarily in the detailed administration of the schools 
in their districts. 



1, Conmiittee System Should Be Abolished 

I'i/hether the Board of Education remains a twenty- 
one member board or becomes a seven member board, the 
system of standing committees should be abolished,- 
because - 

a - It is cumbersome. Before anything can be done, 
the head of the Department must go to his 
committee and receive authorization for his 
act. It must be then passed by the Board of 
Education before action may be taken, 

b- Delay is caused by these circumstances. Com- 
mittees meet bi-weekly and action miist be 
deferred until meetings are held. 

c - The majority of the Inspectors are members of 
only one impo-rtant committee which means that 
upon practically all matters considered by the 
Board of Education there is an unififormed 
majority. 

d - Committees motnally respect each other's author- 
ity in the respective branches, which results 
in unquestioned and undiscussed action by the 
Board of Education, 

e - Presence of a committee system signifies inde- 
pendent action by a num.ber of un-coordinated 
' bodies, each in effect a small Board of Educa- 
tion, whose actions are rubber stamped by a 
large Board, 

f - There is a tendency towards the ass-umption of 
administrative a.uties by the committees. 

2. Business Activities Should Be Correlated with work 
of Superintendent . 

There are now three distinct departments in the 
Board of Education, under three executive heads, who, 
may only by chance, work together with little friction. 

Education of children of the City of Detroit is the 



- 59 - 

sole aim of the Board of Education. All other business 
connected with the Board of Education, - purchasing sites, 
constructing tuildings, buying supplies, employing 
clerks, hookkeepers and janitors -- are subordinate 
to this prime fvinction of furnishing edi^cation, and owe 
their existence to the fact that all such material 
adjuncts are necessary in the process of providing 
education. 

The superintendent of schools is responsible 
for the educational results of the public schools, and 
inasmuch as he has this responsibility, he should be 
provided with all the means and instruments necessary 
for bringing education and the children of Detroit 
together. He must not be handicapped by delays in 
building construction and in delivery of supplies; 
by having incompetent janitors and engineers in charge 
of the school plant; or by having teachers, principals 
and supervisors foisted upon him. 

Such handicaps now accompany the position of 
Superintendent of Schools in Detroit, under the by-laws 
and practices of the Board of Education. The 3uperinten<- 
dont of Schools has under his jurisdiction only the 
educational activities and employes of the Board; the 
purchasing and delivering of supplies, and the employes 
connectec' therewith are under the management of the 
Secretary; the maintenance and care of buildings are 



- so- 
under the direction of the Supervisor of Property; 
the appointment of janitors and engineers in the hands 
of a committee; the power of appointing and promoting 
teachers and principals belongs to another committee, 
all of whom are independent of each other and outside 
of the jurisdiction of the Superintendent of Schools. 
Responsibility is diffused, and in all such cases there 
will be a shifting of responsibility resulting in a 
failure of accomplishment. 

If the superintondont wants an extra room 
built in a crov/ded school, he applies to the Supervisor 
of Property, v/ho does the work to fit in with his own 
plans, the aims of which are to keep buildings in 
repair. There the Supervisor's responsibility ends. 
The teaching of the children must, necessarily, be to 
him a secondary consideration. The maintenance and 
care of buildings is therefore a "Blind Alley" under 
the present system, leading no further than to the up- 
keep of buildings. If the Supervisor of Property ■ should 
delay in constructing this extra room, the Superintend- 
ent cannot order him to rearrange his plans and to has- 
ten his work, but must wait until the proper aommittee 
meets and register a complaint with it. Should fhe 
Superintendent want a building completed at a definite 
time, he must apply to the committee to hasten the 
/architect and the contractors on the job, and the 
oohimittee, architect and contractors have their own 



^ 61 - 

point of viev/ of the situation. The Superintendent 
cannot' demand that the architect confer v/ith him concerning 
the plans of new buildings; he may ask the architect to 
do so, and the latter may accede to his request, hut the 
only way to obtain executive action is to appear before 
the committee, a step v;hich is not only distasteful, but 
ineffieient to take every time the cause arises. If it is 
a question of delivering supplies at a certa.in time, the 
Superintendent must apply to the Secretary, and the latter 
may or may not be sufficiently interested to see that 
supplies are delivered at that particular time. 

All of these separate divisions are "blind 
alleys" which lead to their ov/n particular results v/horo 
they stop. The education of the children is beyond their 
pale. 

With these conditions must be pictured in the 
background a Board of Education, elected by v/ards on a 
partisan ballot, members of which have political ambitions 
and political affiliations, and in v/hora is vested the po\/er 
of appointing employes who perform all the duties mentioned 
above. 

Tv.'o recent experiences in connection with the 
Nordstrum School, emphasize the inefficiency caused 
by decentralized authority, T''.e School, a new one, had no 
seats and v/as short of text books at its opening this 
September. The seating company is under contract to delive: 
and place seats in the school, but owing to some mishap, 



- 62 ~ 

the freight car containing the shipment for the NorSstnini 
School could not he located. It uas up to the seating 
company to get the seats here when they v;ere v/anted, but 
it seems that no officer of the Board is responsible for 
follov/ing up deliveries of seats. The Supervisor of 
Proporty approves the shipment after it is complGtod and 
the scats placed, the Superintendent is merely responsible 
for the plan of seating and the Secretary's responsibility 
apparently ceases v/ith the sending of the order. So anonp; 
the throe department heads, the Nordstrum School was scat- 
less, until one of the assistant superintendents took it 
upon himself to run down the cars, which he did, 

Not until tviTo weeks after schools were opened 
did the Nordstrum School receive its text books. Under 
any circumstances there seems to be no reason why necessa.ry 
supplies cannot bo delivered to schools before thoy open 
in September, Purchases are authorized by the Board of 
Education in the early surxier, and v/hich gives the purchas- 
ing agent and store-keeper at least two months for deliver- 
ies. But here a,gain the Superintendent cQuld not o rde r 
the store-keeper to deliver the books on time. It is not 
meant to imply here, that the heads of departments and 
employes, not under the jurisdiction of the Superintendent, 
do not cooperate v/ith him satisfactorily, but it is assctted 
that there is always a possibility of friction, delay, and 
of inefficiency when functions which are constitutionally 
subordinate arc placed on a par with the main purpose of 
an organisation. 



- 63 - 

COMPARISON OF PK5SEMT AM) PROPOSED PHOGEDURB 

(Purchase of a ne\7 reference book serving as an example) 




A - Principal senc^-s requisition for a reference TDOok to the 

B - Secretary, who forwards it to the 

G - Superintendent, v/ho detcrnines the necessity for the 
purcha,se and returns it to the 

D - Secretary, uho secures prices and presents the 
request to the 

E - Gonnittee, which passes upon the necessity for the 
purchase and recommends the sane to the 

P - Board of Education, which authorized the purchase. 

G - Secretary, after the necessary tine allowed for recon- 
sideration has passed, places the order. 

Tllvffi GONSmiED 





days 


A - B . 


1 


G - D 


1 


E - P 


1 





days 


B - C 





D - E 


1-21 


P - G 


3 



Total tine required - 7 - 27 days 



~ 64 - 

PROPOSED PROCEDUEE 




A - A principal sends requisition for a reference book 

to the 
B - Purcha.sing agent, who gets prices on the article, 

makes out an order, and forv/ards same to the 
G - Accounting officer, who certifies that there is 

a fund allowed by the Board in their annual budget, 

for the article, and encumbers the fund. The order 

now goes to the 
D - Superintendent (the executive head of the Board) 

who determines the necessity for the purchase, 

authorizes the same by signing the purchase order. 

The order is nww placed. 
Time consumed 





davs 


A - B 


1 


B - C 


1-5 


C - D 


1 



Total time 3-7 days 
ADVANTAGES OF THE PROPOSED PROGESURB 

1 - It saves from 4 to 20 days 

2 - It insures the presence of money in the fund with which 

to liquidate the liability if incurred. 



- 65 - 

3.- Uew Rules Should Be Adopted 

In order to bring about the proposed reorganization, 
the rules of the Board should be revised so as to more 
closely correlate the administrative v/ith the educational 
functions of the school system, and by vYhich purchasing, 
accounting, construction, maintenance and care of buildings 
may better facilitate the real purpose of the school sys- 
tem, which is education. '.iJhether or not the person in 
charge of these functions should be subordinate to the 
superintendent must be determined by local conditions 
and the practice of progressive cities. 

Further, the new rules should grant the Board of 
Education legislative and inspectorial functions only, and 
should delegate all administrative functions to the 
Chief Executive and his subordinates. This means removing 
from the Board, among other things, the power to appoint 
teachers, principals, janitors, engineers and other 
subordinate employes. 

The present rules are old and have grown by piece- 
meal additions, as the necessity for new rules manifested 
itself. It is recommended, therefore, that there be 
prepared an entirely new manual, comprehensive _ in its 
scope, and which will meet existing conditions. 



_ 66 - 

4 - proper Duties of the Board Should Be More Thoroughly 
'" fi^ercised. 

The recommendation that all adaninistrative 
duties be taken from the Beard of Education, raises the 
question, what is there left for it to do? There re- 
mains sufficient to be done in legislation, and inspedt- 
ion to keep a Board of Education more than reasonabl^^ 
busy - if its functions are performed properly. 

It is true that if at this moment the adminis- 
trative duties were taken away, the Board would have 
practically nothing to do at the ne:tt meeting. But this 
is due to the failure of the Bor^jra to exercise its proper 
functions. 



- 67 - 

Le gislative 

A fGW of the many legislative problems, \'/hich 

if given adequate attention, v/oulcl take up all the time 

that inspectors could give, are: 

1-A revision of the salary schedule ox teachers in 
order that Detroit may have no difficulty in 
obtaining properly qualified teachers. 

2-The solution of the problem of congestion in the 
Detroit schools by working out a comprehensive 
plan Qf building to cover a period of years, 

S-Standardization of the schools needs, -salaries, 
supplies, buildings, etc. 

4-Establishing qualifications and method of appointing 
candidates for positions of janitors, engineers, and 
all employes not in the educational v/ork. 

5-Whether or not the expense would justify the inclus- 
ion of s\7iminmng pools, auditoriums and workshops in 
Elementary schools, 

A suggestion as to how the Board should consider 
legislation i^ offered in the subject of revising the sal- 
ary schedule. It is reported that some teachers are 
paying more for room and board than they are receiving 
as salary. This legislative problem of the salary sched- 
ule for teachers should be considered in the follov/ing 
way: 

Is the sa-lary schedule of teachers in need of adapt- 
ation to present economic conditions? 

Are the teachers receiving salaries, v;hioh v/ill allow 
then to maintain the standard of living demanded of 
then? 

Is the Board having trouble in securing efficient 
teachers because of the lack of adequate salaries? 



- 68 - 

Are efficient teachers being more easily secared Toy 
other cities? 

\7hat is a just salary rate for teachers? 

What are other cities paying for teachers' services? 

What is the -present salary of teachers compared with 
wages paid stenographers, clerks, hookkeepers, etc? 

Inspectorial 
In its business adninistrati on it is the duty of the 
Board to live v/ithin its income, a,nd a,lso to get a dollar's 
v/orth of services or materials for everj" one hundred cei-.ts 
esrpendedo In its educational administration the Board r^rast 
furnish the best possible odiication to the children, a.nd 
it is therefore incizrabent upon the Board to inspect the 
results of its emioloyes- and to devise means for such 
inspection. The most obvious way to do this is to demand 
periodic reports from executive and adininistratlve of- 
ficers. Among the sub jeciP v;hich can be used effectively 
by the Board are : 

1 - A statement of the amoiints a^ppropriated for 

various purposes at the beginning of the year, 
and the amount spent for such purposes » 

2 - A comparative statement of the per capita cost 

of instruction by schools. 

3 - A comparative statement of the per capita cost 

of instruction in high schools « 

4 -• Tables showing the progress of paipils by grades 

by schools. 

5 - A comparative statement over a nujiiber of jT-ears , 

of the cost of repairs by schools. 

6 - A statement indica/cing a per capitc, cost of 

educational supplies by schools. 



- 69 - 



7, - A statement showing cost of janitorial and 

engineering supplies for each school. 

8, - A comparative statement showing the unit 

cost for cleaning schools » taking the room as 
a unit, 

9, - A statement showing the unit cost of heating 

schools, also taking the room as a unit. 

The following e:co-mple will serve to illustrate 
how the Boa.rd might increase the efficient spending of 
money, by studying carefully, reports submitted by its 
executive and administrative officers: 

During 1915-15 the cost of fuel varied in the 
different schools from $17.47 to (a03,53 per 
classroom unit. The average cost was about f35,40. 
The following tabic shows the four highest and four 
lowest schools in the cost of fuel per classroom: 

Table shov/ing cost of fuel per classroom for year ending 

June 50.1916 
Rank School Cost per rQom 



1 Logan |103,53 



2 Washington 92 

3 Hubbard 57 



28 

86 



4 McMillan 56,67 

100 Parke 22.04 

101 " Columbian 20,77 

102 Gillies 18.13 

103 lIontiGth 17 ♦47 



- 70 - 

Of the 103 schools considered, in 42 there are 
costs above the average, while in the remaining 61 the 
costs were below the average, '.'(Taile it is only natural 
that the cost of fuel per room should very in the different 
shhools, is this largo variation reasonable? I-'i 22^^ of the 
schools, the cost was above §40. 40 v;hile in 36^ of the 
schools, the cost v/as beloiT $30.40. What is the cause of 
the great difference between the costs? Arc engineers in 
2S!fo of the schools burning coal in an extravagent \7ay, or 
is the heating apparatus not giving satisfaction? Or arc 
the schools allowed to become cold in 56% of the schools, 
or are the engineers unusually efficient, or is the hoatinr^ 
apparatus excellent? The Logan School, in which the cost 
per room was S103,53, is heated by stoves. t/ould the cost^ 
of fuel per room in this school approo-ch the average if 
steam fans were installed? If this result could bo accomTr 
plishcd the cost for fuel in this school alone would be 
reduced $817.56 per year. The Irving School and Office 
Building are heated by the Central Heating Company. Is 
this buying of heat cheaper tha.n furnishing heat? In 
other v/ords, the one q^uestion v/hich should be asked of the 
executive officer when there is a variance in results is 
"Why?". 



- 71 - 

A IJeetinp; Under JTe\7 Organisation 

Meetings of the Board, iinder siiggested organisa- 
tion, v/ould not difxer in form from the meetings a,s they 
are nov/ conducted, but the^y would differ in suhstance 
and in character because the questions coming up would 
he of such nature as to deraa.nd delihera/bion and discussion 
on the part of the Boa.rda There would he no matters of 
such administrative routine as cited above, v/hich a 
deliberative bodj;- usually passes automa-ticall3; and mechani- 
cally » Furthermore, "because of the absence o± details, 
there would not onlir be more time a,nd energy" for the con- 
sideration of real problems, but the Boe.rd' woxilo hi'.ve to 
find real problems to discuss, if it wanted to transact 
any business.. 

Because of the nature of the subjects which would 
come before the Board, meetings would be alive and interest- 
ing and would not be deadened by a monotonous reading of 
page upon page of enervating minutiae. In the absence of 
standing committees to which the Board, as a whole, 
now defers in all matters under their jurisdiction, every 
inspector present at the meeting v/ould have to give his 
thought and attention to the matters brought up beca-use 
they v/ould not have been previously passed upon and recom- 
mended by any standing committee. 

Under the suggested organisation, the Superintend- 
ent of instruction as chief executive off icer of the Board 



- 72 - 

of Education v^ould bring up the business before the whole 
Board assembled at the regular meetings. This v;ill mean 
that all the inspectors will be apprised at the same 
time of what matters are before them and a general dis- 
cussion would practically be forced because all new busi- 
ness will originate on the floor of the meetings of the 
Board. 

5. -• Special Sommittees Should Be Used. 

Should matters be brought up at the meetings 
of the Board of Education which require considerable 
thought and additional information, before they can 
be properly decided, special committees should be appoints 
ed to study every phase of the question 'thoroughly, and 
to present to the Board of Education, at some future time, 
their findings and recommendations upon questions submitted 
to them for investigation. 

Instead of having presented in the foim of a 
resolution merely the conclusions reached by a committee, 
as is done at the present time, the Board of Education 
v/ould have submitted to it by the special committee, all 
of the facts leading up to the recommendations and each 
inspector would have an opportunity to draw his own con- 
clusions from the facts rendered in the committee* s re- 
port. 

If such procedure had been followed before the 
request was made of the Common Council and the Boe. rd of 
Estimates for money v;ith ?/hich to erect an addition to the 



- 73 - 

Cass Technical High School, the Board of Education would 
not now be in the position v/here it practically acknow- 
ledges that it did not know what it watited in the first 
place, but after giving the matter some thought, it had 
come to the definite conclusion concerning its desires. 
This case of the Gass Technical High School has been 
cited elsewhere in the report, l3ut it may^-be cited again 
to bring out the point under discussion, 

Without any special investigation, the committ-Q 
on real estate and buildings recommended to the Board of 
Education that |450,000 be requested of the Common Coun- 
cil for the erection of an addition to the Cc-ss Tschmical 
High School, This recommendation was passed by the 
Board together v/ith all the other budget estimates, with 
the usual absence of discussion. After the appropriation 
of |250,000 had been made by the Common Council and Board 
of Estimates, a-special committee _was appointed "for the 
purpose of visiting a number of large cities thruout the 
country and investigating very carefully, modern technical 
schools, in order that in the construction of the new 
technical high school, no vital points that may be of value 
will be overlooked," 

This committee after taking the trip and visit- 
ing a number of large technical schools, submitted a report 
to the Board of Education recommending that the nev/ tech- 
nical high school should be not less than six stories 
in height, of which the estimated coat is about one m.illion 



- 74 



dollars. It is interesting to note that this special 
comiiittee included all of the members of the Gonimittee 
on Real Estate and School Buildings, v/hich had recommended 
the maximiim of ^450,000 %o tie rsouested from the Cci3-non 
Goxxncil for the ne7i school. In other \/ords, we have here 
a perfect exaiaple of standing comiiiittees performing all 
their vrork in a routine manner without special study of 
egen the larger problems and of a Board of Education wh"JoT 
automatically and without question approved the recomriieai-; 
ation of standing committees without having reasons for 
;Jihose recommendations. 

It may be assumed that special committees 
appointed for the purpose of investigating and reporting 
upon specific subjects v/ill do so more thoaroughly then 
standing committees which have gotten into the habit 
of dealing with problems in a si;perficial v/ay caused by 
multitudinous details with which their time is taken up. 
It is probable that a committee appointed on this quest- 
ion of an addition to the Cass High School, would have 
studied thoroughly, not only the kind of high school 
suitable for Detroit but would also have gone into the 
question of the need for the high school, its effect 
upon the enrollment of the other high schools in the 
City, and the advisability of dxanducting costly high 
schools in every section of the City, in addition to an 
unusually expensive technical high school, when the prob- 
lem of congestion in elementary schools is so acute. It 



- 75 - 

is further possible that this committee might have 
touched upon a comprehensive plan of building construct- 
ion for the future. 

If there were one general criticism which 
might be levelled at the Board of Education of Detroit, 
it v/ould be that matters of great import are decided 
superficially, and there seems to be no comprehensive 
plan for the development of the school 'system, 

6. - Calendar of Meetings Should Be Prepared 

To assure sound discussion of business which 
comes up at the meetings of the Board, a calendar giving 
a synopsis of every item to Ib.e taken up at the meeting 
should be prepared and sent to the i^iembers of the Board 
a few days prior to the regular meeting. ]?urther business 
arising after a calendar had been prepared should be 
gotten out in the form of a supplementary calendar. In 
addition to this, all reports about special committees 
should be subm.itted to the Superintendent, as executive 
officer, whose business it will be to have such reports 
printed or multigraphed or typewritten, and a copy of 
the full report sent to each member of the Board of 
Education prior to the meeting. In fact all the items 
of business and reports of committees to be taken up at 
the meeting could be printed before the meeting and the 
type held by the printer, until action has been taken 
by the Board, when the result of such action cotild be 
included. This would save time in the printing of the 



- 76 - 

proceedings v/ithout any cdditioncl e^rjense. 

By follov/ing out the cbove recommendations, 
every inspector v/ould come to the meetings prepared to 
discuss intelligently, and ivith a knowledge of facts 
the problems put up to him for decision. 

7, - Size of School Board Should Be Reduced 

While it is suggested that the aloove re- 
organisation talre place v/hether the Board of Education 
remains constituted as at the present, or hecones a seven 
member Board, elected at large, it is asserted rafter a 
thoro study of the present situation, the.t the proposed 
re-organisati-ni can reach its r^azcimum effectiveness more 
easily under a small school board = 

It is recommended thorof re, that the measure 
which v/ill be voted upon ^n IJjvembcr 7 th ne3ct , by the 
■_)eople of Detroit, enabling the-i t .• reduce the Board 
of Educatio];! of this City to a bodp of seven jnorabers, 
elected at large, for a terin of si.c years, be si^pported, 
for the following reasons: 

Sisadvaiitages of a Large Board 

1 - A board of tv;enty-one r:ion(Dors is cumbersome. 

2 - A large board tends t^ d'-> fhe v.'ork throu.gh standing 

committees, which means inde'_jeiident action by "v;hat 
proves to be a number of small boards. 

3 - The Board of Education it8#lf becomes a mere "rubber 

stamp". 

4 - Being elected by wards, the inspectors are interested 

in pleasing their ovm constituents. 

5 - There is a- possibility that the influential inspectors 

v;ill get more for their v/a.rds than those inspectors \7hc 
aare less powerful, thus sacrificing the interest oi 
some wards for. that of others. 



~ 77 - 

6 - Responsibility is diffused in a twenty-one member 

school board. Each inspector feels about five 
p©r cent responsibility for education in the city 
as a whole, and one hundred per cent responsibility 
for education in his vmrd, meaning that he will do 
everything in his povi^er for his ward, 

7 - Under the ward system, an inspector is likely to be 

interested in the possible "patronage" in the schools 
in his district, 

8 - Having as his constituents, people of a comparitively 

small district, a candidate for position as inspector 
under the ward system, must be known locally only, 
and he may be proportionately of the same limited 
caliber. 

9 - Under the present plan, half of the Bss rd of Education 

comes up for re-election every tv70 years, which mean:^' 
that at every such election there is a possibility 
of having fifty per cent of the men conducting the 
affairs of the Board, newr and inexperienced. 

Advantages of a Small Board 



1 - A seven member shcool board is sufficiently small to 

work as a whole without confasion and unencumbered 
by standing commiteees. 

2 - By originating all business at the meeting of the whole 

Board, every member is fully aware of everything the 
Board of Education is doing, and even more important 
is the fact that every member must give some thought 
to all the business, 

3 - Being elected at large, each inspector is one. hundred 

per cent responsibile to the v/hole city for- the educa- 
tional affairs of Detroit. Responsibility is cen- 
tralized in these seven men, all of whom are follov/ed 
i?f^.all their actions, by the whole city, 

4 - Having as their constituents, the electorate of the 

whole city, the candidates for office of inspector 
must be v/idely known, in which case it is probable 
that more responsible men than at present will be 
elected to office. 

5 - Being elected at large, and responsible to the whole 

city, inspectors are less likely to sacrifice the 
interest of one district for another. 



- 78 - 



- Under the proposed law, inspectors v/ill serve a term 
of six years, and there will always be a majority of 
experienced men on the Bi:ard as tv/o, two and three 
nei? inspectors are elected respectively every tviro 
years. This six year term provided by this new law 
v?ill fui'nish a Board more thoroughly familiar vi^ith 
educational problems than is possible now. 

















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